Report to Overview and Scrutiny Committee - Manydown 08 April 2014 Subject: Manydown - Local Plan representations and evidence Status: Routine Matter for Discussion Report Ref: Ward(s): All Key Decision: Yes Key Decision Ref: 869 PF Report of: Richard Bayley - Strategic Project Manager - Manydown Contact: 01256 845675 – ext. 2675 Appendices: Appendix 1 – BDBC Pre-Submission Local Plan consultation - Manydown submission 04 October 2013 Appendix 2 – BDBC Suggested changes to the Manydown site allocation and site policy wording (presented to P&I OSCOM 05 March 2014 and Cabinet 18 March 2014) Appendix 3 - BDBC Manydown draft Vision (Local Plan EIP document) Appendix 4 – BDBC Manydown draft Masterplan (Local Plan EIP document) Papers relied on to produce this report BDBC LPA – Suggested changes to the Basingstoke and Deane Pre-Submission Local Plan (paper presented to P&I OSCOM 05 March 2014 and to Cabinet 18 March 2014) SUMMARY 1 This Report 1.1 This report has been prepared for both the Manydown Overview and Scrutiny Committee and the Manydown Executive Committee (MEC). It provides a summary of the proposed joint representations by BDBC and HCC acting in their landowner capacities to the re-consultation on the BDBC Local Plan that is due to be undertaken between 25 April and 13 June 2014. 1.2 The report also sets out the draft Vision and Masterplan documents for Manydown that have been produced specifically to provide evidence for the BDBC and HCC joint landowner representations to the Local Plan through to and including the Local Plan EIP. In addition, the report also outlines the budget of £1.575m made by BDBC that is matched by the same amount of budget by HCC to undertake the work required to secure planning permission for the Local Plan phases of the Manydown development. 1.3 The Manydown OSCOM met on 24 March 2014 to consider and comment on the scope and content of the proposed representations together with the draft Vision and draft Masterplan for Manydown. Its views will be reported to the MEC through a Supplementary Report tabled at its meeting on 08 April 2014. 1 of 13 2 Recommendation 2.1 It is recommended that the MEC: i. notes the changes to the Manydown Governance arrangements; ii. notes the progress made to date on the draft Vision and draft Masterplan; iii. considers the comments of the Manydown OSCOM as outlined in the Supplementary Report to be tabled at its meeting on 08 April 2014; iv. delegates authority to the Portfolio Holder for Property, Finance and Commissioning to submit representations to the Local Plan reconsultation based on the contents of this report having considered the views of the Manydown OSCOM; v. delegates authority to the Portfolio Holder for Property, Finance and Commissioning to approve any detailed changes to the draft Vision and draft Masterplan attached to this report that may be required in order to respond to requests for information or changes made to the Local Plan re-consultation draft by the LPA prior to the Local Plan EIP; vi. approves the £250k budget for 2014/15 within the overall £1.575m budget that has been made by BDBC for the four years from 2014/15 to secure planning permission for the Local Plan phases of the Manydown development. 2 of 13 PRIORITIES, IMPACTS AND RISKS Contribution to Council Priorities This report accords with the council’s Budget and Policy Framework and directly supports the Council Plan priority/priorities of planning policies that safeguard local distinctiveness to: “Promote the use of Manydown land to deliver much needed high quality homes and facilitate wider borough benefit, which protects local communities” GLOSSARY OF TERMS Term Definition BDBC Basingstoke and Deane Borough Council EPP OSCOM Economic Prosperity and Performances Overview and Scrutiny Committee CIL Community Infrastructure Levy EIP Examination in Public HCC Hampshire County Council LPA Local Planning Authority Manydown OSCOM Manydown Overview and Scrutiny Committee MAP Members’ Advisory Panel MEC Manydown Executive Committee NPPF National Planning Policy Framework 3 of 13 MAIN CONSIDERATIONS 3 The Proposal 3.1 Background 3.1.1 The council resolved in July 2012 to actively pursue the development of Manydown in order to secure the proper planning of the area in which it is situated and enable it to be considered in the Site Allocation work for the revised draft Local Plan. This together with its inclusion in the 2013/14 Council Plan constitutes the policy framework within which the Manydown Executive Committee has been acting to pursue the council landowner interests with the Economic Prosperity and Performance Overview and Scrutiny Committee providing oversight of this work from a landowner perspective. 3.2 Manydown Governance 3.2.1 At its meeting on 27 February 2014, Full Council approved the following Governance arrangements for Manydown (see paragraph 2.1 of the report): Under the JDPA, joint liaison arrangements would be effected between the relevant Portfolio Holders of BDBC and HCC (these would be nondecision making); The Portfolio Holder arrangement would report to and recommend to their respective executives, in the case of BDBC the MEC (but with prior consultation with a Manydown OSCOM); A continuation of the MEC at BDBC which, as a committee of the Cabinet, has Executive powers to take decisions in line with the Full Council decision of July 2012; BDBC would set up a politically balanced Manydown Overview and Scrutiny Committee to be implemented with immediate effect in advance of the conclusion of the work on Governance arrangements currently been carried out by the Constitutional Working Party. 3.2.2 The paper presented to Full Council meeting on 27 February 2014 confirmed that the Governance arrangements for Manydown are to cover the phase to planning permission (see paragraph 3.5.2 of the report). Future phases of the project relating to the construction and management of Manydown may require either an evolution of these Governance arrangements and/or some separate Governance arrangements depending on the existence of partners/investors, all of which is the subject of further work to be undertaken over the next 1-2 years and the subject of separate reports to Members. Membership 3.2.3 At the Full Council meeting on 27 February 2014, the membership of the Manydown OSCOM was confirmed as 8 in total on a proportional basis and accordingly would comprise the following members for the remainder of the Council year: 4 of 13 Cllr Terri Reid Cllr Paula Baker Cllr Marilyn Tucker Cllr Diane Taylor Cllr John Leek Cllr Sean Keating Cllr David Potter Cllr Ian Tilbury Conservative Liberal Democrat Conservative Conservative Conservative Labour Labour Independent Chair Vice Chair Terms of Reference 3.2.4 The paper presented to Full Council meeting on 27 February 2014 set out the key elements of the scope and terms of reference for the Manydown OSCOM (see paragraph 3.5.5 of the report) which is set out in more detail below for consideration and approval by members of that Committee to: Operate in a manner that ensures the strategic landholding interests of BDBC are protected; Take account of the objective for which the council purchased the land under section 226 of the Town and Country Planning Act 1990, which was the proper planning of the area in which the land is situated; Review and scrutinise work to obtain planning permission for the Manydown development in a manner that is deliverable and viable in accordance with the NPPF and provide comments to the MEC on proposals and recommendations; Review and scrutinise detailed masterplanning work for Manydown in a manner that ensures a high quality and exemplar development and provide comments to the MEC on proposals and recommendations; Review and scrutinise policy and financial issues of the Manydown development project and provide comments to the MEC on proposals and recommendations. Note: Manydown OSCOM to operate in accordance with Part 7 of Constitution. Timing/Frequency 3.2.5 3.3 3.3.1 It is proposed to hold Manydown OSCOM meetings at least five working days prior to any scheduled MEC meeting and that initially there would be a minimum of two meetings a year for the OSCOM and MEC not including Update briefings or Site visits for Committee and respective HCC members. Update on Progress On 04 October 2013, BDBC in its capacity as a joint landowner of Manydown submitted its response to the Pre-Submission Local Plan consultation that was undertaken by BDBC in its capacity as an LPA. The BDBC landowner response, which is contained in Appendix 1, was in line with that outlined in the paper submitted to the EPP OSCOM on 19 September 2013 and thereafter to the MEC on 24 September 2013. Following receipt of the 5 of 13 responses to the Pre-Submission Local Plan consultation, the LPA has decided to undertake a re-consultation between 25 April and 13 June 2014 on a limited number of issues and as part of that process has prepared a revised draft of the Local Plan which includes changes to the Manydown policy and to its allocation boundary. This report therefore outlines the proposed response by the joint landowners to the changes that the LPA is proposing to make to the Manydown elements of the Local Plan. 3.3.2 In addition, paragraph 3.7.5 of the paper that was presented to the EPP OSCOM on 19 September 2013 and the MEC on 24 September 2013, highlighted that the draft Vision and draft Masterplan reports would be the subject of a report to the EPP (now Manydown) OSCOM and the MEC once consideration of the changes to the Local Plan has been made by the LPA prior to the Local Plan EIP. Accordingly, this report sets out the draft Vision and the draft Masterplan that takes account of the changes proposed by the LPA to the Manydown elements of the Local Plan and provides the necessary evidence to be submitted to the Local Plan EIP in order to support the proposed site allocation of Manydown (including land at Worting) in a manner that is capable of delivering approximately 3,400 houses in the Local Plan period to 2029 as set out by the LPA in the revised Manydown policy SS.3.10. 3.3.3 Also, further work has been undertaken to develop a programme of work and the budget to secure planning permission for the phases of the Manydown development to be included in the Local Plan period to 2029. This report provides an update on the programme together with the supporting budget. 3.4 Local Plan re-consultation - proposed representations 3.4.1 The revised Local Plan was submitted to Cabinet on 18 March 2014 and is the subject of a report to Full Council on 27 March 2014 which will recommend approval for the LPA to undertake a re-consultation between 25 April and 13 June 2014 (the Supplementary Report to be tabled at the MEC on 08 April 2014 meeting contains an update from the Cabinet and Full Council meetings). It contains a Site Allocation Boundary and a Site Policy for the Manydown project including land at Worting with an assumed delivery of approximately 3,400 houses in the Local Plan period to 2029. This constitutes 25% of the 13,464 total number of new homes required to be built during the Local Plan period to 2029 and 46% of the 7,340 housing requirement of that total number of homes which is to be met through Local Plan site allocations. Manydown comprises the largest single site to be identified in the Local Plan. 3.4.2 The Site Allocation Boundary for the Manydown development that is contained in the revised Local Plan (see Appendix 2) has been changed to reflect the comments made in the submissions by the joint landowners to the Pre-submission Local Plan consultation on 04 October 2013 (see Appendix 1). In addition, the LPA has included in the Manydown allocation Plot 6a south of the railway line and north of Pack Lane as a ‘developable site’ limited to a yield of approximately 300 units, unless workable transport mitigation measures can be demonstrated to support a higher yield. Officers propose support for these changes to the Site Allocation Boundary for Manydown in the joint submission to be made during the re-consultation on the revised Local Plan. 3.4.3 The Site Policy for Manydown SS3.10 that is contained in the revised Local Plan (see Appendix 2) includes some changes that reflect the comments 6 of 13 made in the submissions by the joint landowners (see Appendix 1) together with some policy wording that has either been retained or changed. In addition, the delivery period has been redrafted to provide some flexibility over housing delivery to run from 2017/18 – 2028/29 which is in line with the submissions made by the joint landowners. The table below sets out a summary of the comments that officers propose to make in the joint submission on the Manydown policy wording to be made during the reconsultation on the revised Local Plan. A Local Plan Policy SS3.10 (summary) Manydown contribute 3,400 houses to the overall housing supply in the local plan period to 2029 Officer Comment Suggested Changes The wording in this clause is changed from ‘approximately’ to ‘at least 3,400 houses’. B Diversity of dwelling types, self-build, gypsies and travellers Definition of local shopping too narrow in context of a size of development like Manydown Over time, developments of a similar size to Manydown tend to support District Centre commercial facilities that would be complementary to those located in/around Basingstoke and that would reflect long term employment needs and requirements in the area No comment – support Self-build and Gypsy and Traveller should be removed from the policy and covered in a Borough wide policy in the Local Plan with any detail relating to future planning applications better dealt with during Masterplanning Recognition of the point about the definition of local shopping. Redraft this clause to support the provision of commercial and retail floorspace commensurate with the size of Manydown and reflects long term employment needs and requirements in the area as per EP1 clause (c). Also it is more appropriate to explore the types of commercial facilities during Masterplanning. None Manydown will have an overall green space and infrastructure strategy that would also include land allocated for Country Park No comment – support Recognition of that point. Redraft clause (g) to begin with “To take account of…” instead of “Respond positively…” and to include the recognition that part of the process of developing in a sensitive manner also includes the potential to mitigate. Delete this clause and use policy EM11 in the local plan Redraft this clause to reflect the policy objective of protecting the quality of life for existing C Range of facilities to support community D Proper provision of schools to community Proper provision of green space/ infrastructure E F Allocation includes the Worting estate under third party ownership which Manydown landowners are working with to establish how many houses can be delivered in plan period Subject to the inclusion of amendments outlined below, Manydown landowners believe that it can deliver at least 3,300 houses in plan period on its land Self-build is supported in principle but has not been defined Gypsy & Traveller need has not been identified beyond 2017 G Country Park for the benefit of the borough Strategic Landscaping H Heritage I Protect the quality of life for existing residents in the The landscaping and heritage assessments contained in the evidence to the Local Plan represent baseline conditions and do not take account of the potential to mitigate and/or develop in a sensitive manner Repetition of core policy EM11 contained in the local plan Policy as drafted is too prescriptive in specifying the retention of the “separate 7 of 13 None surrounding areas J Scheduled Ancient Monuments (SAMS) K Ecology L Development road infrastructure Long term planning for borough M identity and character” for Worting, Wootton St. Lawrence and Winklebury and requiring that Roman Road be conserved as a green boundary. Needs to enable the proper planning of the area and be consistent with other core policies which promote effective inter-relationships with other existing/new communities Potential to mitigate or relocate if appropriate is not included Repetition of national policies and guidelines Repetition of core policy EM4 contained in the local plan No comment – support residents and enable the landowner to explore ideas to achieve that objective with existing residents during the detailed masterplanning work following the local plan adoption. Redraft to take account of the requirement for the Manydown development to have a single carriageway link road. N Limit impacts on the local traffic O Encourage non-car transport P Sustainability Manydown development requires a single carriageway link road which could also be part of the wider road network Landholders support the potential extension of this road to the south of the B3400 including optimum alignment for crossing the railway line within their landholding As per clause (i) above Policy is too restrictive in requiring specific traffic management measures in the absence of exploring different options with the communities The emphasis should be for the Manydown development to have ‘safe and convenient access’ for both residents of existing communities and new residents of Manydown There should be phased provision of public transport rather than including it from the outset which will not be viable Existing building regulations and Code for Sustainable Homes contain stringent carbon reduction targets Landowners are committed to exploring the potential for new technology but being too specific in the policy does not provide flexibility required to adopt new/different techniques 8 of 13 Delete this clause and rely on existing national policies and guidelines Delete this clause and rely on policy EM4 in the local plan None Include relevant aspects in redrafted clause (i) as proper planning of the area is likely to require full and detailed consideration of options during detailed masterplanning that assess how Roman Road is used to achieve ‘safe and convenient’ access for both existing residents and new residents of Manydown. In that vein, specific mention of the following words should not be included in the redrafted clause “ with the implementation of appropriate traffic management measures to protect the access and amenity of existing residents” Redraft clause to include phased provision. Deliverability and viability of new energy saving techniques should be determined first before specifying them and so it would be better for local planning authority to apply a suitably drafted borough wide policy, if justified, possibly policy EM8. Q Limit noise impact R Provision of sewerage and surface water infrastructure Longer term planning of Manydown S T 3.4.4 Plot 6a This clause duplicates existing provisions required by relevant British Standards. No comment – support Delete this clause and rely on policy EM12 in the local plan The policy map should refer to land that is subject to “longer term masterplanning”. It would be better to describe the non-allocated area of land on the policy map as land for longer term masterplanning. We are prepared to develop Plot 6a as a reserve site as per our submission on 04 Oct 2013 None None Other policies contained in the revised Local Plan for re-consultation that the joint landowners made representations on during the Pre-Submission Local Plan consultation during 2013 (see Appendix 1) are: Affordable Housing (CN1): there are no material changes to this policy in the proposed revised Local Plan for re-consultation and as such, from a landowner perspective, the joint landowners propose that the original position is restated that there remains a need for a fuller consideration of all affordable housing types and thresholds in respect to Manydown during later discussions on detailed Masterplanning with the LPA. In addition, the joint landowners await responses to the technical questions raised during the recent BDBC CIL consultation relating to the valuation assumptions and calculations used to set the proposed CIL charging scheme. As such, the landowners will reserve judgement on a final position concerning the provision of 40% affordable housing in the Local Plan until such time that they can properly assess the balance between affordable housing, CIL & s106; Neighbourhood Plans: the local planning authority has confirmed the boundary (which replicates the Parish council boundary) for the proposed Neighbourhood Plans for Oakley and Wootton St Lawrence. Representations have already made to the LPA (14 May 2013 for Oakley and 16 December 2013 for Wootton St Lawrence) to exclude the Manydown development from these boundaries in order to provide sufficient flexibility to accommodate the development. Further representations are therefore proposed to be made by the joint landowners on the basis that the development of the Manydown land raises wider strategic considerations which cannot effectively be resolved through a neighbourhood plan; Strategic Gaps (EM2): the application of this policy between Basingstoke and Oakley covers an extensive part of the Manydown land. The effect of the policy would be to permit development in that area only in restricted circumstances and so the landowners should submit representations to ensure that this policy is either varied or would not constrain the ability to discharge Manydown site policies, in particular those requiring either the development of Borough wide supporting facilities (e.g. schools or playing fields, a cemetery etc.) or safeguarding for future transport/sewerage infrastructure requirements to facilitate opportunities for the longer term planning of Manydown. The landowners do, however, recognise that an appropriate ‘gap’ between Oakley and Basingstoke to prevent coalescence can be 9 of 13 maintained in a manner that would also not prejudice the objectives for Manydown both during and after the plan period; 3.4.5 3.5 Employment (EP1) and Town, District, Local Centres (EP3): the 2013 Retail Assessment estimates 30,000 square metres of retail capacity is needed over the plan period. Policy EP3 seeks to address this need by expanding Basingstoke town centre. However, the LPA will likely need to identify other retail sites in the Borough to accommodate the identified need in sustainable manner over the development plan period. Manydown can play an important role in this respect. Therefore the landowners recommend strong support for the proposed policy EP1 – Economic Growth and Investment which includes specific reference to Manydown. Equally the landowners also strongly support the proposed insertion of the new sentence in EP3 which states: “New local and district centres may also come forward as part of larger developments set out in Policy SS3”. BDBC landowning officers and HCC Officers will continue to provide information to the LPA in order to ensure that the Local Plan contains a site allocation and policy wording for Manydown that is deliverable and viable. In that respect, officers will review the actual wording contained in the reconsultation of the Local Plan and work with the Portfolio Holder to respond in accordance with the proposed summary of representations set out above. Draft Vision 3.5.1 Beyond Green, a leading consultancy that specialises in creating strategies and plans for great and sustainable places where people want to live, was appointed by the joint landowners during April 2013 to undertake the initial Visioning work for the Manydown project. The research and work that Beyond Green has undertaken has enabled it to develop a long term framework that includes: a draft vision statement for the project; design principles which will guide the future development of the project; and some character profiles that define or codify how the different types of neighbourhoods found in a major residential project (i.e. urban, suburban, rural etc.) could be developed. See Appendix 3 for a copy of the draft Vision for Manydown. 3.6 Draft Masterplan 3.6.1 URS, a multinational planning, engineering, construction and technical services consultancy was appointed by the joint landowners during the course of March 2013 to prepare a Masterplan and supporting technical studies (a printed copy of the technical studies has been placed in each of the Group rooms). The research and work undertaken has been designed to demonstrate that areas of land allocated for development in the emerging Local Plan is deliverable and has the potential to create a high quality environment within the context of the draft Vision. The draft Masterplan has been shaped and determined by a series of technical studies, including: land use planning or masterplanning; planning policy; viability; transport; cultural heritage; community infrastructure; sewerage and drainage; flooding; green infrastructure and landscape; sustainability; and ecology. See Appendix 4 for a copy of the draft Masterplan. 3.7 Status of the draft Vision and draft Masterplan 10 of 13 3.7.1 The draft Vision and draft Masterplan documents have both been produced to provide the appropriate amount of information to the Inspector at the Local Plan EIP to evidence that it is possible to deliver a viable residential development that can provide around 3,400 houses on the land within the Site Allocation Boundary at Manydown in the Local Plan period to 2029. Consequently, both the draft Vision and the draft Masterplan have by necessity concentrated on land both north of the railway line and at Plot 6a. 3.7.2 As part of the preparation of the draft Vision and the draft Masterplan, the landowners together with Beyond Green and URS have held two workshops with the Manydown MAP on 7 May and 28 June 2013 to ensure that there was Member involvement and participation during these work-streams. In addition, the Manydown MAP undertook a visit of the Manydown site on 06 September 2013 and of the Poundbury development on 06 February 2014 where a discussion was also held on the draft Vision and draft Masterplan. 3.7.3 Further work on developing the Vision and a detailed Masterplan will be undertaken during 2014 and 2015 so that they can form the basis of public consultation events that the joint landowners propose to hold during the course of 2015 ahead of the submission of a detailed planning application. 3.8 3.8.1 Planning Permission - Programme & Budget The joint landowners have developed a work programme to secure planning permission for the area of land to be included in the Site Allocation Boundary for Manydown in the emerging Local Plan. The main elements of this work programme are outlined below: Planning Strategy: identifying and implementing the most efficient strategy for achieving planning permission which also includes the costs for providing representations at the Local Plan EIP and the Manydown Planning Inquiry as well as obtaining legal advice as appropriate; Masterplan: undertaking detailed masterplanning work on the parts of the Manydown site that are allocated in the emerging Local Plan to provide the necessary level of information for the Planning Inquiry on Manydown and to enable public consultations to be undertaken with the local communities; Delivery/Financial Strategy: developing and implementing a strategy for delivering Manydown including the potential for BDBC and HCC to directly invest in the project and also consideration of the mechanisms for BDBC/HCC to partner and/or contract developers together with the associated Governance arrangements. 3.8.2 The BDBC medium term financial plan 2014/15 received approval by the Full Council at its meeting on 27 February 2014 and contains a total budget allocation of £1.575m for Manydown over four years beginning April 2014 to meet its share of the costs of securing planning permission. 4 Corporate Implications 4.1 Financial Implications 11 of 13 4.1.1 The council’s revenue budget for 2013/14 includes a total of £188,800 to cover its share of expenditure relating to the initial work to develop a draft Vision (see Appendix 3) and a draft Masterplan (see Appendix 4). A request to carry-forward £20,000 of this to 2014/15 to reflect the phasing of the completion of the work will be submitted for consideration as part of the outturn report to Cabinet in June 2014. 4.1.2 As part of the budget report for 2014/15, Council agreed to increase the Manydown reserve to £1.575m and release £250,000 of this into the 2014/15 revenue budget. The same amount of funding has been agreed by Hampshire County Council resulting in a total combined budget of £500,000 in 2014/15 which will support the following three work programmes: Planning Strategy £80,000 Masterplanning & Public Consultations £360,000 Delivery & Financial Strategy £60,000 Under the terms of the Manydown lease, promotional costs including the above works would be recoverable by both councils against any future sale proceeds, if the land is sold for development. Annual expenditure on the land and income from rents is managed by the Joint Manydown Committee, with the net income divided equally between the two councils at year end. 4.2 Risk Issues 4.2.1 The principal risks identified in and addressed by this report would arise from the LPA not having, or taking, the opportunity to consider the comments and the proposed representation that it is proposed the joint landowners submit to the re-consultation on the Local Plan in order to protect the value of the investment made by BDBC when it purchased the 999 year lease in 1996. 4.3 HR Issues 4.3.1 There are no HR implications arising from the report 4.4 Equalities 4.4.1 There are no Equalities implications arising from the report 4.5 Legal Implications 4.5.1 The recommendations set out in this paper including the summary of proposed joint landowner representations to the re-consultation of the PreSubmission Local Plan together with the draft Vision and draft Masterplan are designed to protect the landowners position and reduce the risk of potential legal implications arising from BDBC not being able to actively promote Manydown in a deliverable and viable manner. 4.6 4.6.1 Any Other Implications There are no other specific implications arising from the report 12 of 13 5 Communication and Consultation 5.1 The Manydown MAP has been kept appraised and been involved in the preparation of the draft Vision and draft Masterplan and has also commented on these documents. 6 Conclusion and next steps 6.1 The Manydown Executive Committee is to consider the contents and recommendations of this report together with the comments from Manydown OSCOM meeting held on 24 March 2014. 13 of 13